The  Polity  of 


I UBilAHY 

I 8TLIO.1NT 

DE,"A3TMEf)T 
I INTEfiNATION'AL 
' COMMITTEE. 

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^ J 


the  Young  Men*s 


Christian  Association 


Digitized  by  the  Internet  Archive 
in  2016 


https://archive.org/details/associationpolitOOcoul 


THE 


ASSOCIATION  POLITY 


A HISTORICAL  STUDY  OF 
ASSOCIATION  RELATIONSHIPS 


PREPARED  BY 


JOHN  M.  COULTER,  PH.  D. 

HEAD  PROFESSOR  OF  BOTANY  IN  THE  UNIVERSITY  OF  CHICAGO 


READ  BEFORE  THE  CONFERENCE  OF  VOLUNTEER  WORKERS  IN 
CITY,  TOWN  AND  RAILROAD  ASSOCIATIONS,  LAKE 
GENEVA,  WIS.,  THURSDAY,  JULY,  18,  1901. 


CHICAGO  : 

Published  by  The  Secretarial  Institute  and  Training  School  of 
Young  Men’s  Christian  Associations. 

August  1,  1901. 


It  is  the  purpose  of  The  Secretarial  Institute  and  Training  School 
of  Young  i\Ien’s  Christian  Associations  to  invite  scholars  of  note  and 
Association  men  of  large  experience  and  ability  to  make  extended 
historical  and  critical  studies  of  living  Association  themes  and  to  pre- 
sent the  results  in  papers  or  addresses  upon  the  platform  of  the  Con- 
ference of  Volunteer  Workers  at  Lake  Geneva.  Selected  papers  will 
be  published  from  time  to  time  by  the  institution  as  a contribution  to 
the  general  investigation  and  discussion  of  themes  vital  to  Associa- 
tion work. 

It  is  believed  that  this  institution,  educational  in  purpose,  and 
composed  as  it  is  of  both  volunteer  and  employed  Association  leaders 
connected  with  local,  state  and  international  Association  bodies, 
is  in  position  to  furnish  a platform  where  important  questions  bear- 
ing upon  the  Association  movement  can  be  discussed  with  a freedom 
and  exhaustiveness  not  possible  in  state  or  international  conventions. 
It  is  to  be  understood,  however,  that  neither  this  institution  nor  its 
members  necessarily  endorse  or  are  committed  to  the  views  expressed 
or  the  positions  taken  in  these  papers  or  addresses. 


4 


THE  ASSOCIATION  POLITY. 

The  Young  Alen’s  Christian  Association  has  become  so  complex 
an  organization  that  the  relationship  of  its  parts  is  in  danger  of  being 
bewildering.  Frequent  and  clear  statement  of  these  relationships 
is  necessary,  for  the  first  duty  of  every  Association  worker  is  to  know 
what  every  constituent  organization  is  planned  to  do.  Like  ever}' 
effective  system,  however,  a very  few  ideas  dominate,  and  what  may 
seem  complexity  to  the  casual  observer  becomes  extreme  simplicity 
to  the  initiated.  Non-professional  workers  become  easily  confused 
among  the  relationships  of  the  various  constituent  organizations,  and 
it  may  not  be  too  much  to  say  that  there  is  also  some  confusion 
among  those  who  work  professionally.  As  the  Association  has  be- 
come more  widespread  new  needs  have  developed,  and  to  meet  these 
new  organization  has  been  devised  from  time  to  time,  until  now  we 
have  a system  which  has  been  developed  by  a sort  of  budding  out- 
growth, and  not  one  which  was  deliberately  planned  and  articulated 
from  the  beginning. 

Two  prominent  dangers  always  arise  in  an  extensive  organization 
which  has  developed  in  this  way.  One  is  due  to  the  fact  that  there 
is  at  first  no  distinct  definition  of  the  limitations  within  which  each 
constituent  organization  should  operate.  Elach  of  these  organiza- 
tions, started  to  meet  some  immediate  need,  without  any  clear  con- 
ception as  to  Its  possible  sphere  of  usefulness,  presently  touches 
other  organizations,  and  must  relate  itself  to  them  when  its  possible 
usefulness  has  been  discovered. 

Tlie  other  danger  which  arises  in  an  extensive  system  which 
has  developed  gradually  and  tentatively  is  that  organizations  devised 
to  meet  temporary  needs  may  not  recog'nize  the  time  to  let  go  when 
the  need  has  been  met.  Lmtil  adjusted  this  leads  to  a waste  of 
working  power,  for  it  duplicates  effort,  and  such  duplication  inevita- 
bly develops  friction. 

The  Association  has  had  the  reputation  of  being  a conspicuous 
illustration  of  a religious  organization  whose  energy  is  conserved  and 
well  directed.  If  this  reputation  is  to  be  maintained,  every  possibil- 
ity of  duplication  and  of  friction  must  be  eliminated.  Strain  must 
be  relieved  at  every  point,  or  there  will  be  loss  rather  than  trans- 
mission of  powder.  The  great  business  sense  of  the  Association  rec- 

5 


ognizes  this,  and  much  of  the  thought  and  effort  of  its  leaders  is  to 
ease  the  machinery.  We  are  pledged  to  service,  and  it  is  not  a ques- 
tion of  individual  rights,  but  of  effective  service.  Individual  judg- 
ment or  ambition  or  idiosyncrasy  must  be  ruthlessly  sacrificed  to  this 
supreme  purp>ose.  It  is  an  organization  in  which  position  has  no 
right  of  control,  but  the  far  higher  right  of  service. 

In  view  of  these  statements  it  may  be  well  to  examine  our  present 
system,  and  to  discover  the  proper  limitations  of  its  constituent  or- 
ganizations in  so  far  as  they  touch  or  overlap  one  another.  By  this 
means  we  may  recognize  the  danger  pioints,  which  every  Association 
man  must  devoutly  desire  to  be  avoided,  for  no  one  can  wish  to  see 
the  waste  of  a single  ounce  of  energy,  all  of  which  must  be  scru- 
pulously conserved  for  the  service  of  Christ. 

It  may  be  well  to  call  attention  to  the  fact  that  these  danger  points 
can  never  be  avoided  by  compromise,  for  they  continue  to  exist  after 
the  period  of  compromise  is  passed.  A compromise  is  essentially 
a suspension  of  hostilities,  but  even  armed  neutrality  is  always  a 
miserable  locking  up  of  energy.  A compromise  which  supplies  a 
so-called  “working  basis”  is  an  acknowledgment  that  hostility  and 
effective  work  cannot  co-exist.  As  a compromise  means  an  expres- 
sion of  hostility  deferred  rather  than  ended,  it  seems  to  me  to  be  an 
anomaly  in  such  an  organization  as  the  Young  Men’s  Christian  As- 
sociation, smacking  more  of  European  politics  than  of  the  Kingdom 
of  Christ. 

The  most  fundamental  statement  in  reference  to  the  organiza- 
tion of  the  Young  Men’s  Christian  Association  is  that  the  local  asso- 
ciation is  the  independent  and  authoritative  unit,  and  that  every 
other  organization  is  its  creature  and  servant.  It  is  necessary  to  em- 
phasize this  statement,  since  a superficial  observer  might  imagine 
that  the  local  association  is  the  lowest  and  least  authoritative  mem- 
ber of  the  system.  The  combined  local  associations  have  delegated 
certain  duties  to  the  general  State  and  International  committees 
which  it  has  constituted,  but  they  have  never  delegated  authority 
to  them.  In  so  far  as  authority  has  been  exercised  by  these  com- 
mittees, in  reference  to  local  associations,  it  has  been  self  assumed, 
without  a vestige  of  right.  The  local  Association  is  supreme  in  its 
own  field,  and  holds  no  relation  to  State  and  International  commit- 
tees except  as  it  voluntarily  seeks  their  aid.  These  committees  have 
been  constituted  by  the  local  associations,  among  other  reasons,  that 
they  may  have  at  their  call  the  service  of  highly  trained  specialists ; 
but  these  same  specialists  have  no  right  to  thrust  their  services  up>on 
any  association  unasked.  Of  course,  that  local  as.sociation  is  the 


6 


wisest  which  keeps  in  closest  touch  with  these  specialists,  for  it 
should  utilize  the  power  that  it  has  sought  to  develop.  Just  now, 
however,  we  are  speaking  of  the  constitutional  rights  of  local  associa- 
tions, rather  than  of  their  privileges.  It  is  a fact  well  known,  even 
outside  of  the  Young  Men’s  Christian  Association,  that  specialists  are 
always  tempted  to  assume  authority.  It  is  well  to  remember  that 
knowledge  is  power  but  not  authority.  I feel  that  this  is  so  vital  to 
the  usefulness  of  the  Association  in  general  that  I would  urge  upon 
every  local  association  a jealous  guardianship  of  its  rights,  and  a 
Christian  resistance  of  everything  which  flavors  of  an  assumption 
of  authority  by  w’ell-meaning  but  over-zealous  secretaries.  I know 
that  this  is  speaking  bluntly,  hut  I feel  that  as  a friendly  student  of 
the  Association  it  is  my  duty  to  speak  plainly.  Let  me  repeat,  there- 
fore, that  it  is  of  paramount  importance  to  hold  fast  to  the  position 
that  all  authority  is  vested  in  the  brotherhood  of  local  Associations, 
and  that  it  has  delegated  authority  to  no  other  organization. 

There  is  but  one  possible  contingency  that  can  justify  the  un- 
sought interposition  of  the  general  committees  in  the  affairs  of  a 
local  association,  and  that  is  when  the  association  has  proved  to  be 
so  inefficient  that  its  life  is  in  danger.  But  even  this  is  one  of  the 
duties  laid  upon  these  committees  by  the  brotherhood  of  local  asso- 
ciations, which  has  constituted  them  its  agents  in  this  matter, 

I am  speaking  against  the  natural  tendency  in  large  organizations 
to  centralize  authority.  Whenever  this  tendency  has  found  expres- 
sion in  religious  enterprises  it  has  led  either  to  a hierarchy,  which 
paralyzes  individual  effort,  or  to  a revolt,  which  leads  to  diminution 
of  power  or  to  disruption. 

It  may  be  well  to  emphasize  the  fact,  however,  that  although  the 
local  association  is  its  own  master,  and  in  the  general  interest  of  the 
whole  organization  should  resent  any  assumption  of  mandatory 
authority  by  the  general  committees,  it  is  still  bound  to  them  by  the 
strongest  ties.  It  must  seek  from  them  the  largest  measure  of  serv- 
ice; it  must  consult  with  them  at  every  step,  for  it  has  constituted 
them  to  act  in  this  very  capacity.  It  would  be  strange  for  one  to 
store  up  a sppply  of  power  and  then  not  to  use  it. 

Passing  to  the  Metropolitan  Association,  we  discover  that  it  is 
merely  a larger  local  unit,  entirely  independent  and  authoritative  in 
its  own  field.  Its  various  branches  or  departments  are  not  indepen- 
dent units,  but  merely  fractions.  What  has  been  said  of  die  rights  of 
the  local  association,  and  its  relations  to  the  general  committees,  may 
be  applied  word  for  word  to  the  status  of  the  Metropolitan  Associa- 


tion,  and  there  is  no  need  to  repeat  it.  There  is  an  additional  danger, 
however,  which  arises  from  the  more  complex  character  of  the  Met- 
ropolitan Association.  Its  departments  or  branches  may  become  so 
prominent  as  to  be  regarded  as  units  rather  than  fractions. 

The  Metropolitan  Association  is  organized  like  the  human  body, 
with  different  organs  to  do  different  work,  but  all  dominated  by  the 
brain.  The  brain  must  be  in  sensitive  connection  with  all  the  organs 
in  order  that  they  may  work  harmoniously  and  that  the  brain  may 
plan  effectively.  To  treat  some  branch  as  though  it  were  not  a part 
of  the  whole  Metropolitan  Association  is  to  attempt  to  isolate  the 
hand  or  the  foot  from  the  brain.  The  way  to  reach  the  organs  of 
the  body  effectively  is  through  the  brain,  and  that  general  committee 
which  attempts  to  touch  a Metropolitan  department  or  branch  inde- 
pendently, and  not  through  the  general  office,  has  introduced  an  ele- 
ment of  discord.  Such  lack  of  method,  just  as  in  the  human  body, 
leads  to  disorder  and  therefore  to  loss  of  power.  If  the  Metropolitan 
Association  is  to  administer  its  branches  wisely,  the  central  office  must 
be  the  channel  of  every  outside  contact,  whether  from  the  branch  to 
the  general  committees,  or  from  the  general  committees  to  the  branch. 
For  example,  for  a secretary  of  one  of  the  general  committees  to 
enter  into  any  relations  with  any  Metropolitan  department  or  branch, 
except  through  the  co-operation  of  the  central  office,  is  to  introduce 
confusion  and  to  set  a very  dangerous  precedent,  which,  if  followed, 
would  threaten  the  life  of  the  Metropolitan  organization,  because  it 
nullifies  its  purpose. 

The  two  forms  of  organization  just  considered,  the  local  and  the 
^Metropolitan,  are  local,  fundamental,  authoritative,  each  one  a 
single  unit.  The  two  remaining  organizations  to  be  discussed 
are  totally  different  in  character.  They  are  general,  secondary,  and 
advisory,  the  creatures  and  servants  of  the  local  units.  It  has  become 
customary  to  refer  to  the  duties  of  the  State  and  International  organi- 
zations as  the  work  of  supervision.  The  literal  meaning  of  that  word 
applies  well  to  their  duties,  for  it  means  a “looking  over”  the  whole 
field,  the  purpose  being  to  study  and  to  be  prepared  to  meet  its  needs. 
A secondary  meaning  has  crept  into  the  word,  however,  and  super- 
vision almost  universally  implies  the  authoritative  direction  of  work. 
This  derived  meaning  is  entirely  foreign  to  the  functions  of  the 
State  and  International  organizations,  so  far  as  I have  been  able  to 
discover  from  a careful  study  of  the  past  fifty  years  of  Association 
history.  Every  authoritative  statement  that  I have  seen  implies  that 
the  work  of  these  organizations  is  advisory,  and  not  supervisory  in 
any  authoritative  sense.  I would  recommend,  therefore,  that  the 

8 


word  “supervision”  be  stricken  from  the  lexicon  of  Association 
terminology,  and  I am  the  more  free  to  propose  this  since  1 have 
probably  spoken  and  written  as  much  as  any  one  under  the  title 
“Endowment  for  Supervision.”  Perhaps  the  very  use  of  this  word 
has  had  an  unconscious  intluence  in  some  cases  in  transforming 
advice  into  direction ; tor  I would  not  think  it  surprising  for  one  who 
is  constantly  told  that  he  is  to  supervise  a work,  to  infer  that  he  is 
expected  to  direct  it.  The  word  is  too  misleading  to  be  retained. 
I know  that  its  application  in  Association  work  is  plain  enough,  but 
we  cannot  afford  to  use  so  prominent  a word  in  so  special  a sense, 
which  must  be  explained  historically  to  be  understood. 

The  time  has  come  when  the  limitations  of  these  two  general 
organizations  must  be  clearly  defined.  Their  relations  to  each  other 
and  to  the  local  associations  must  not  be  left  to  individual  impulse  or 
judgment,  or  duplication  and  friction  will  be  inevitable. 

The  State  organization  began  its  existence  in  1866,  but  for  five 
years  there  were  no  employed  secretaries.  Now  the  State  Commit- 
tee, with  its  one  or  more  paid  secretaries,  is  a prominent  feature  of 
the  Association  system.  This  organization  has  grown  in  usefulness 
and  in  importance,  until  now  its  boundaries  need  definition  in  so  far 
as  they  touch  local  associations  and  the  International  organization. 
Its  name  well  defines  its  field  of  operation,  for  its  boundary  is  the 
State  boundary.  So  far  the  situation  is  clear  enough. 

The  first  question  that  arises  is  as  to  the  relation  of  the  State 
organization  to  the  local  associations.  It  has  been  stated  over  and 
over  again  in  published  documents  that  this  relation  is  “purely 
advisory,  not  authoritative.”  This  general  committee,  through  its 
secretaries,  is  to  study  the  states,  is  to  open  new  fields,  and  is  to 
strengthen  existing  organizations.  In  other  words,  when  a state  has 
such  an  organization,  to  it  is  committed  what  were  formerly  the 
functions  of  the  International  Committee;  it  replaces  the  Inter- 
national Committee  in  that  particular  State.  The  advantage  of  this 
in  securing  closer  study,  more  intimate  touch,  more  continuous 
service,  needs  no  discussion  at  this  late  day. 

The  relation  of  the  State  committee  and  its  secretaries  to  the 
local  associations  has  been  discussed  under  the  latter  head,  but  it 
may  be  well  to  emphasize  certain  points.  It  has  no  authority  over 
any  local  association,  but  must  hold  itself  in  readiness  to  render 
service  whenever  called  for.  To  be  of  servdce  implies  that  it  must 
make  the  intimate  personal  acquaintance  of  every  local  organization  ; 
and  this  lies  at  the  basis  of  much  of  its  visitation.  I speak  of  this 
because  I have  seen  such  visits  regarded  as  official  inspections,  as 

9 


the  presence  of  superior  official  authority.  This  attitude  is  so  far 
removed  from  the  real  relations  of  the  two  organizations  that  it 
seems  only  to  need  statement  to  be  corrected.  The  visit  is  that  of  a 
trained  and  paid  servant  of  the  local  association,  whose  expert  advice 
may  be  useful,  but  whose  authority  is  nil.  Let  the  distinction  be 
clearly  understood.  The  visits  of  these  experts  should  be  welcomed 
and  their  advice  heeded,  for  that  is  their  business ; and  woe 
to  the  association  that  is  so  self-sufficient  as  to  underrate  the  value  of 
larger  knowledge  and  experience.  If  this  advice  assumes  the  attitude 
of  authority,  however,  the  attitude,  not  the  advice,  should  be  resented, 
in  the  interests  of  the  association  at  large,  as  well  as  for  its  educative 
effect  upon  the  transgressor. 

Furthermore,  in  the  case  of  local  associations  with  different 
branches  or  departments,  in  charge  of  different  secretaries,  the  whole 
theory  of  the  Association  system  demands  that  such  associations  be 
dealt  with  as  units.  Therefore,  it  would  be  entirely  out  of  the  ques- 
tion for  a State  Secretary  to  deal  directly  with  a particular  depart- 
ment or  branch  except  upon  the  invitation  or  with  the  consent  of  the 
general  office.  It  must  be  remembered  that  consent  does  not  mean 
merely  assent  to  some  announced  procedure.  The  word  means  “a 
thinking  over  together”  of  the  proposed  action,  a partnership  in  the 
planning.  The  provision  that  the  secretary  of  a general  committee 
shall  deal  through  the  central  office  of  a local  association  is  not  satis- 
fied by  merely  serving  notice  that  some  particular  thing  is  to  be  done. 
This  is  not  consent  or  co-operation,  it  is  merely  information,  which 
may  or  may  not  be  acceptable.  This  dealing  through  a central 
office  is  not  making  machinery  interfere  with  the  application  of 
service,  but  it  is  making  machinery  co-operate  with  the  attempt  to 
serve. 

It  follows  still  further,  from  the  principles  already  stated,  that 
when  the  State  committee  has  effected  the  organization  of  a new 
local  association,  or  has  restored  to  vigor  one  that  has  been  languish- 
ing, its  direction  of  affairs  must  cease  the  moment  that  association  is 
able  to  shift  for  itself.  There  are  two  things  involved  here  which  are 
important.  One  is  that  this  duty  of  the  State  organization  ceases 
when  the  local  association  has  attained  self-support.  The  other, 
which  is  the  real  reason  for  the  first,  is  that  self-support  and  inde- 
pendence develop  strength.  The  local  association  must  be  left  to 
itself  as  much  as  possible  if  it  is  to  become  a thing  of  bone  and 
muscle. 

These  same  principles  are  also  easy  of  application  in  discovering 
the  effective  relationship  between  the  State  and  the  International 

10 


organizations.  In  the  absence  of  a state  organization  the  Inter- 
national Committee  functions  as  such,  just  as  it  did  before  there 
were  any  state  organizations ; but  when  it  has  effected  such  an 
organization  its- direct  contact  with  local  associations  ceases.  It  com- 
mits the  intimate  advisory  contact  to  the  State  organization,  that  its 
own  energy'  may  be  applied  in  the  larger  field.  This  does  not  mean 
that  it  has  no  further  function  in  the  organized  States,  for  it  is  the 
creature  and  servant  of  the  brotherhood  of  local  associations,  just  as 
are  the  State  organizations.  It  does  mean,  however,  that  its  imme- 
diate and  independent  contact  with  the  local  associations  ceases,  and 
that  it  must  find  this  contact  through  the  State  organizations,  or 
there  will  be  duplication  of  effort,  conflict  of  plans,  waste  of  energy, 
and  inevitable  friction.  Having  effected  a State  organization,  it 
must  “let  go,”  except  in  its  co-operation,  upon  the  invitation  or  con- 
sent of  the  State  organization.  The  advisory  work  of  the  State 
organization  is  a unit,  in  somewhat  the  same  sense  that  a local  asso- 
ciation is  a unit,  and  to  deal  directly  and  independently  with  any  of 
its  constituent  branches  is  to  violate  the  first  principles  of  effective 
organization. 

Co-operation  is  the  word  which  expresses  the  relationship  be- 
tween State  and  International  organizations,  and  co-operation  implies 
the  fullest  and  most  harmonious  understanding  between  the  co- 
operating parties.  The  local  associations  have  constituted  the  Inter- 
national organization  to  supplement  but  never  to  duplicate  the  work 
of  other  organizations.  For  different  divisions  of  the  same  army  to 
plan  independent  campaigns  in  the  same  territory  would  be  regarded 
as  a military  absurdity.  The  local  associations,  the  source  of  all 
authority  in  the  Association  system,  must  see  to  it  that  there  is  no 
such  absurdity  in  the  campaigns  of  its  advisory  forces.  To  this  end 
ever)'  local  association  should  see  to  it  that  every  operation  of  an 
international  secretary  in  its  State  must  be  in  full  and  sympathetic 
co-operation  with  the  State  organization.  This  is  not  cutting  oft  any 
of  the  privileges  of  the  International  Committee,  but  is  adding  effec- 
tiveness to  its  contact.  If  it  is  said  that  this  is  curtailing  the  authority 
of  the  International  Committee,  it  should  be  remembered  that  it  has 
no  authority  to  curtail.  It  is  not  a question  of  clashing  authority,  for 
neither  State  nor  International  organizations  have  any  authority ; it 
is  merely  a question  of  the  most  effective  use  of  working  power. 

The  State  organization,  therefore,  on  the  one  hand  holds  an 
advisory  relation  with  the  local  associations  of  the  State,  and  a co- 
operative relation  with  the  International  Committee.  And  I must 
repeat  that  co-operation  does  not  mean  equal  rights  in  the  same  field. 

11 


but  a working  together  understandingly  and  harmoniously.  I find 
in  association  literature  such  a phrase  as  “forced  co-operation,” 
which  seems  to  me  to  be  self-contradictory  when  there  is  no  ques- 
tion of  authority  involved.  Such  a phrase  implies  that  one  party  has 
the  authority  to  impose  itself  upon  the  other.  Invited  or  proffered 
and  accepted  co-operation  is  the  only  possible  voluntary  co-operation, 
the  only  possible  co-operation  in  the  absense  of  authority.  And  when 
the  question  of  the  source  of  the  invitation  is  raised,  it  is  perfectly 
evident  that  the  local  association  through  the  State  organization,  or 
the  State  organization  directly,  must  be  the  inviting  party  when  the 
International  Committee  is  to  co-operate.  It  would  be  an  absurdity, 
for  example,  for  an  International  Secretary’  to  invite  himself  to  co- 
operate with  a State  organization  or  with  a local  association.  It  is 
inconceivable  that  he  should  come  by  letter  or  in  person  without  any 
desire  to  co-operate. 

It  remains  to  consider  the  relations  of  the  International  organiza- 
tion. As  has  been  said,  it  is  the  creature  and  servant  of  the  affiliated 
local  associations,  and  has  no  authority  over  them.  Any  such  far- 
reaching  organization  is  at  once  a blessing  and  a menace.  It  is  a 
blessing  on  account  of  its  possibility  of  great  service  in  the  stimula- 
tion and  extension  of  Association  work ; it  is  a menace  on  account  of 
human  frailty,  which  is  always  tempted,  when  in  influential  position, 
to  assume  an  authority  which  does  not  belong  to  it.  Few  of  us  are 
strong  enough  to  resist  this  temptation  when  it  really  presents  itself, 
especially  if  we  are  young  and  ambitious.  }^Iany  of  those  Interna- 
tional secretaries  wdio  come  into  most  frequent  contact  with  the  asso- 
ciations are  young  men  full  of  vigor  and  of  zeal.  These  qualities  have 
led  to  their  selection.  They  feel  the  broad  sweep  of  their  activities 
and  it  is  entirely  natural  that  this  should  intoxicate  them  just  a little. 
They  are  consecrated,  but  have  also  the  splendid  qualities  of  youth, 
and  cannot  be  expected  to  repress  natural  and  innocent  impulses  as 
can  those  longer  in  training.  They  recognize  their  own  wide  grasp 
of  the  problems  pertaining  to  their  special  work ; they  feel  that  their 
own  judgment  in  reference  to  these  problems  is  the  best  that  is  avail- 
able. Their  knowledge  and  their  experience  seduce  them  into  uncon- 
sciously assuming  authority,  and  their  advice  insensibly  merges  into 
command.  Their  tone  becomes  mandatory,  for  the  councillor  has  be- 
come the  general  in  spirit.  So  gradually  and  unconsciously  has  the 
mandatory  spirit  developed  that  any  question  as  to  authority  is  apt  to 
occasion  surprise  and  probably  resentment,  any  expression  of  which 
self-respect  of  course  represses.  In  my  earlier  experience  as  a teacher 
I recognized  this  natural  tendency  in  myself.  My  constant  contact 

12 


was  with  those  who  were  inferior  in  knowledge  and  in  experience.  It 
was  my  privilege  to  teach  and  to  advise  them.  When  some  dissent 
from  my  opinion  was  expressed,  I was  both  surprised  and  chagrined 
to  find  that  there  was  a taint  of  resentment  in  my  feeling.  I discov- 
ered that  while  I thought  1 was  a teacher  and  a helper,  I had  the 
feeling  and  perhaps  the  air  of  a commander. 

I have  made  this  analysis  for  two  reasons : The  first  is  to  show 
that  an  assumption  of  authority  by  one  in  a prominent  advisory  posi- 
tion is  natural  and  perhaps  inevitable.  The  second  reason  is  to  call 
attention  to  the  fact  that  in  so  far  as  this  tendency  is  natural  it  is  the 
more  subtle  and  dangerous.  If  authority  were  consciously  and  delib- 
erately and  openly  assumed  by  any  one  to  whom  it  does  not  belong, 
resistance  would  organize  at  once  and  dispossess  the  usurper.  But 
when  the  assumption  is  apparently  unconscious  and  repeatedly  dis- 
claimed, and  still  continues  operative,  it  is  like  ambush  rather  than 
open  warfare;  something  that  may  show  itself  unexpectedly  and 
with  endless  and  baffling  repetition.  When  a man  persists  in  doing 
something,  and  excuses  himself  each  time  by  claiming  that  he  w'as 
not  conscious  of  doing  it,  or  that  he  did  not  mean  to  do  it,  what 
chance  is  there  to  restrain  him  from  doing  it  again  ? 

In  brief,  the  great  menace  in  an  International  organization  is  its 
tendency  to  an  unconscious  assumption  of  the  mandatory  attitude,  an 
attitude  wfflich  is  not  only  foreign  to  its  purpose,  but  dangerous  in 
the  extreme  to  the  best  interests  of  the  organization.  I fear  that  the 
International  Committee  is  too  frequently  regarded,  even  by  Associa- 
tion workers,  as  the  organization  of  highest  authority.  The  political 
organization  of  our  own  country  has  furnished  an  attractive  but  a 
misleading  illustration  of  the  organization  of  the  Association.  Local 
associations  are  likened  to  the  municipalities  in  which  they  exist, 
self-governed,  but  within  limits  set  by  the  State.  The  State  organi- 
zation is  likened  to  the  State  government,  which  has  great  freedom, 
and  which  legislates  for  the  State,  but  within  limits  fixed  by  the 
Federal  government.  The  International  organization  is  likened  to 
the  general  government,  which  leaves  States  and  municipalities  to  a 
large  measure  of  self-government,  but  which  legislates  for  the  coun- 
try as  a whole.  I mention  the  figure  because  I have  heard  it  used, 
and  because  I regard  it  as  peculiarly  misleading.  The  two  systems 
are  alike  only  in  the  accident  of  political  boundaries.  In  spirit  they 
are  totally  unlike.  In  the  political  organization  the  State  and  Federal 
governments  act  upon  an  authority  which  has  been  specifically 
delegated  to  them.  In  the  association  organization  no  authority 
whatsoever  has  been  delegated  to  the  State  and  International  organi- 

13 


zations,  and  therefore  they  have  neither  legislative,  judicial  nor 
executive  powers.  It  might  be  well  to  call  attention  to  tlte  fact, 
however,  that  with  all  this  delegation  of  authority  the  Federal  gov- 
ernment does  not  presume  to  co-operate  with  a State  except  upon  invi- 
tation ; nor  does  a State  government  presume  to  co-operate  with  a 
municipality  except  under  similar  conditions.  This  is  merely  the  view 
of  statesmanship  as  to  the  effective  method  of  using  organization. 

In  emphasizing  the  fact  that  the  International  organization  has 
no  authority  which  gives  to  it  mandatory  rights,  I wish  to  call  atten- 
tion to  the  fact  that  there  is  a type  of  authority  far  higher  in  quality 
and  more  effective  in  result  than  official  authority;  and  to  cultivate 
this  type  of  authority  lies  peculiarly  within  the  province  of  the  Inter- 
national organization.  I refer  to  authority  which  belongs  naturally 
to  knowledge  and  to  experience;  not  to  the  authority  which  gives 
the  right  to  command,  but  the  authority  which  controls  because  it 
inspires  confidence.  It  is  the  Christian  method  of  exercising  author- 
ity, which  is  not  the  issuing  of  edicts,  but  the  attracting  of  free 
agents.  It  is  the  authority  of  worth  and  not  of  position  which  must 
ever  be  the  possession  of  the  International  organization. 

It  may  be  well  to  state  in  positive  form  the  functions  of  the 
International  organization,  which  have  been  delegated  to  it  as  an 
agent  of  the  local  associations ; and  it  must  not  be  forgotten  that  all 
of  these  duties  are  to  be  performed  in  an  advisory  capacity. 

The  first  prominent  duty  is  to  organize  and  to  develop  State 
organizations.  In  the  very  nature  of  things  the  International  Com- 
mittee cannot  keep  its  secretaries  in  close  and  continuous  contact 
with  the  work  of  a State,  and  in  effecting  a State  organization  it  is 
providing  a substitute  for  this.  But  even  when  adequate  organiza- 
tion shall  have  been  effected  in  every  State,  there  will  remain  for  the 
International  organization  many  conspicuous  duties. 

A second  duty  is  very  natural,  namely,  to  respond  directly  to  the 
call  of  associations  in  States  or  Provinces  where  no  State  or  Provin- 
cial organization  exists.  Such  local  Associations  hold  no  other 
advisory  relation  than  with  the  International  organization,  and  they 
must  call  upon  it  whenever  assistance  is  needed.  This  w'as  the  origi- 
nal advisory  relation  of  all  local  associations  before  there  were  any 
State  organizations. 

A third  duty  is  to  respond  through  the  State  or  Provincial 
organization  to  the  requests  of  town,  city,  student,  railroad,  and  all 
other  local  Associations  existing  in  organized  States  and  Provinces. 
The  emphasis  in  this  is  to  be  laid  upon  the  words  “through  the  State 
or  Provincial  organization.”  This  means  that  the  International  Com- 

14 


mittee,  having  assisted  in  effecting  a State  organization,  must  pro- 
mote its  efficiency  by  recognizing  and  using  it.  To  disregard  it  in 
its  owm  field  is  to  handicap  it.  This  also  means  that  any  local  Asso- 
ciation may  ask  for  the  service  of  an  International  secretary,  but 
that  having  constituted  State  organizations  it  must  feel  bound  to 
regard  and  use  them.  While  absolute  authority  belongs  to  the  local 
association  in  the  conduct  of  its  own  affairs,  the  brotherhood  of  local 
associations  has  legislated  the  State  organization  into  existence,  and 
each  member  of  this  brotherhood  is  morally  pledged  to  maintain 
rather  than  to  cripple  its  efficiency. 

A fourth  duty  of  the  International  organization  is  to  supplement, 
not  duplicate,  the  effort  of  the  corresponding  department  of  State 
work,  and  to  place  emphasis  upon  the  responsibility  vested  in  State 
organizations,  in  this  way  securing  economy  of  effort,  time,  and 
money.  This  duty  is  also  a natural  outcome  from  the  principles  we 
have  been  discussing,  and  needs  but  little  comment.  Where  such  a 
vast  amount  of  work  is  needed,  to  duplicate  effort  is  almost  criminal, 
and  duplication  by  two  agencies  can  only  be  avoided  by  the  closest 
co-operation,  a co-operation  in  planning  as  well  as  in  execution.  For 
the  State  organization  to  plan  a campaign  in  the  interest  of  a certain 
branch  of  its  work,  and  then  to  discover  that  the  International  Com- 
mittee is  conducting  an  independent  campaign  in  the  interest  of  that 
same  branch,  is  so  discouraging  and  even  exasperating  that  it  will 
certainly  result  in  friction.  We  must  economize  effort,  time,  and 
money,  and  we  must  invariably  and  sternly  rebuke  any  tendency  to 
wastefulness  in  these  things.  A man  who  cannot  co-operate,  or  who 
cannot  recognize  what  co-operation  implies,  or  who  wilfully  refuses 
to  co-operate,  is  totally  incapacitated  for  holding  any  position  which 
demands  co-operation.  It  seems  to  me  that  this  is  merely  the  state- 
ment of  a perfectly  self-evident  fact,  as  if  I should  say  if  a man  can- 
not teach  he  is  totally  incapacitated  for  holding  any  position  which 
demands  teaching. 

A fifth  and  very  prominent  duty  is  to  promote  the  interests  of  the 
-Association  at  large  in  the  way  of  unification,  stimulation,  and  public 
recognition.  The  International  secretaries  are  our  general  spokes- 
men, and  must  possess  those  qualifications  which  commend  them  to 
public  attention.  Their  clear  and  forceful  presentation  of  Associa- 
tion work  through  speech  and  publication  should  bring  increasing 
recognition  and  support.  In  addition  to  this,  they  are  in  a position 
to  secure  the  large  view,  to  suggest  those  things  which  will  make  the 
whole  vast  mechanism  work  as  a harmonious  whole.  They  can 
recognize  and  stimulate  regions  of  relative  weakness,  and  seek  to 

15 


bring  up  every  organization  to  the  level  of  wise  and  unflagging 
effort.  In  fact,  all  the  great  opportunities  of  the  International 
organization  are  included  in  this  fifth  function,  for  the  preceding  ones 
are  but  details  of  operation. 

I have  given  a statement  of  relationships  in  accordance  with  what 
I have  recognized  to  be  the  principles  involved  in  the  history  of  the 
Association.  It  must  not  be  understood  that  these  relationships 
have  ever  been  definitely  formulated  by  the  only  authoritative  body, 
the  brotherhood  of  local  associations.  They  are  matters  of  inference 
rather  than  of  formulation,  much  as  is  the  common  law  of  England. 
What  I have  done  is  to  apply  well  known  principles  in  such  a way 
that  they  may  be  consistent  and  may  not  diminish  or  duplicate  work- 
ing power.  Perhaps  it  would  be  unwise  to  make  a detailed  statement 
of  relationships  the  subject  of  legislation.  The  spirit  of  effective 
relationship  can  be  stated  in  a very  few  words  and  is  sufficient  for 
those  whose  impulse  is  to  obey  in  spirit  rather  than  in  letter.  The 
details  of  relationships,  in  every  possible  contingency,  could  not  "be 
stated  fully  enough  or  explicitly  enough  to  restrain  those  whose  ten- 
dency is  to  obey  personal  impulse  regardless  of  regulation.  Detailed 
legislation  is  cumbrous  and  often  confusing,  like  the  scores  of  rules 
which  burdened  the  old-fashioned  boarding  school.  Effective  obe- 
dience must  always  be  voluntary,  and  voluntary  obedience  is  a thing 
of  spirit.  The  Association  cannot  legislate  the  right  spirit  into  any- 
one, but  it  can  state  principles ; and  these  principles  should  guide  all 
activities,  not  because  they  have  any  official  authority,  but  because 
they  are  the  expression  of  the  Association  brotherhood  as  to  the  most 
effective  way  of  conducting  the  organization.  To  me  just  two  words 
sufficiently  express  all  the  relationships.  To  the  local  and  Metro- 
politan associations  the  relation  of  the  State  and  International 
organizations  is  advisory.  Between  the  State  and  International 
organizations  the  relation  is  co-operative.  Of  course,  all  depends 
upon  the  meaning  one  puts  into  these  two  words.  It  has  been  my 
purpose  in  this  paper  to  suggest  the  meanings  which  seem  to  me 
natural  and  effective,  besides  being  in  strict  accord  with  the  interpre- 
tation of  these  relations  as  expressed  in  the  official  publications  and 
deliverances  of  the  conventions  and  by  the  leading  representatives  of 
the  organization. 


Price,  ten  cents;  fifty  cents  per  dozen. 


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